Jagannath University Journal of Arts Vol-8, No. 2, July-December 2018 Historical Paradoxes on Emergence of Administrative Tribunals: Measuring Compliance With These in Bangladesh * Sharmin Aktar Abstract Administrative Tribunal has become an indispensable forum to provide a more expeditious, less formal and sometimes less expensive method than the courts for resolving complex disputes to be decided by adjudicators with expertise in the particular field. Recognizing the reality of the concept and considering the demand of the global community, the article aims to explore emergence of administrative tribunals in two opposite legal systems, namely, Common and Civil law. The paper analyses the establishment of this alternative forum from the context of Bangladesh, who relies on Civil Law system taking a little departure from that of Common Law. To substantiate historical phases in different contexts, it interrogates theories, namely, Rule of Law and Separation of Power, which are related to each other on conceptual founding. The article concludes with the view that despite lots of criticisms surrounding emergence of administrative tribunals, this special justice system evolved and enriched Bangladesh side by side the countries noted in the study, though it is not free from vice and does not comply with all requirements suggested by normative analysis. Introduction and Objectives of the Study The development of administrative tribunals has been shaped within two opposite streams. Of them, one touches Continental countries wherein there is a special system of administrative courts whose sole concern is with administrative law.1 Other stream existing in Common Law countries takes a departure from the previous one denying the existence of administrative tribunals, which overwhelmingly creates a paradox. The most striking difference between Common Law and Civil Law system is the absence within Common Law system of any separate administrative courts as they developed in Civil Law countries.2 The division between the two, so far as emergence of administrative tribunals is concerned, has its firm roots in theoretical discourses. The article is designed to explore historical inconsistencies underpinning the outgrowth of administrative tribunals from the viewpoint of Civil and Common law legal system of with specific reliance on Bangladesh as a base country. The study looks into the emergence of British, USA and *Lecturer, Department of Land Management and Law, Jagannath University, Dhaka 224 Historical Paradoxes on Emergence French administrative tribunals in finding out the establishment of this forum from the context of Bangladesh. Except Bangladesh three countries are chosen for the purpose of this article, though lots of countries are within the ambit of Common and Civil Law systems. To the end of disclosing the growth of administrative tribunals of Bangladesh, the article further briefly narrates Rule of Law and Separation of Powers which are closely related to this domain. Methodology The whole study is based on qualitative research design. Qualitative research method included content analysis by reviewing of scholarly literature,published writings, cases of the Appellate Division of the Supreme Court of Bangladesh, the Administrative Tribunals Act, 1980, the Administrative Tribunals Rules, 1982 and other incidental laws. The research was relied on both primary and secondary data. It was depended for primary data on the Constitution, Bare Acts, Rules and case laws. Side by side to reach to a satisfactory result, secondary data, like, books, articles, newspaper, annual reports, internet surfing, government‟s documents and reports, historical evidence, research publications, presentation papers were reviewed. Evolution of Administrative Tribunals in Civil Law System: Focusing on France Administrative Tribunals have their roots traced from French system of Administrative Tribunals.3 In France, there exists dual system of adjudication, namely, DroitCivila, which is equivalent of civil law or municipal law and is administered by civil courts, and Droitadministratif, the other branch of law, is equivalent to administrative law and is administered by different set of courts.4 This French system of two sets of courts was the product of French Revolution as there was a strong demand from the suffering people for a strong and effective check on the excesses of administration.5 The political thought prevailing in 1789 was in favour of stopping ordinary courts from interfering in activities of the administration. Regarding this issue, Napoleon‟s work as a law reformer began while he was still First Consul.6 As early as 1797, he wrote in his diary: We are very ignorant of political and social sciences. We have not yet defined executive, legislative and judicial powers. I see but one feature which we have defined clearly in 50 years-the sovereignty of the people; but we have done no more to settle what is constitutional than in the distribution of powers. The legislature should no longer Jagannath University Journal of Arts 225 overwhelm us with a thousand laws, passed on the spur of the moment, nullifying one absurdity by another and leaving us, although with 300 folios, a lawless nation. 7 The 1791 Constitution had provided:“lestribunaux ne peuvententrepredresur les fonctionsadministrativesouci les . administrateurs pour raison de leursfonctions”.8 In the Constitution of 1799 Napoleon revived the Conseil du Roi under the title of Conseil d’ Etat,9 conferred upon it jurisdiction to adjust administrative disputes and required its authorization for proceeding against government agents, except ministers, for acts connected with their duties.10 So the droitintermediaire, the law of the revolutionary period between the first session of the AssembleeConstituante of 1789 and the coming to power of Napoleon Bonaparte in 1799, altered the traditional social order with almost unparallel speed and thoroughness.11 All the institutions, namely, the absolute monarchy, the interlocking powers of king, nobility, clergy, and judiciary, the old territorial division of the country into provinces, the feudal regime of land, the courts system, and the tax system of the ancient regime were rooted out in very short order.12 However, the French Constitution of 1799 established the Council d’ Etat which was the beginning of the system of Administrative Tribunals. The Council of State is one of the oldest institutions of France and its history goes back as early as XIIIth century and it was created by King Philip, the IVth.13 Then the Council was established in order to give King Philip advice on government issues and to assist him in his mission to deliver royal justice to his subjects.14 During the French Revolution it was suppressed greatly because it was strongly tied to the monarchy.15 When Napoleon came to power in 1799, the Council of State was re-established in its modern form. On May 24, 1872 an epoch-making piece of legislation was enacted which gave to the Conseil’s decisions the force of judgments, but at the same time revived the provision for a Tribunaldes Conflicts to resolve questions of jurisdiction between the Conseil and ordinary courts.16 In 1889 the Conseil asserted exclusive jurisdiction of actions involving excess of power by administrative authorities.17 Despite all the changes of political regimes, this Council of State has survived, since then, up to the present Republic. Since French ordinary courts cannot decide on matters concerning the state, lower level administrative courts were established in 1987.18 226 Historical Paradoxes on Emergence Evolution of Administrative Tribunals in Common Law System: Concentration on USA and England Undoubtedly the growth and expansion of administrative tribunals in Common Law relates to evolution of administrative law. Before proceeding to the former one, the discourse on the latter one calls attention.Administrative law is as old as government itself and it stems from the proliferation, as a functional response to changing needs of the world community.19 In its modern connotation it was not recognized as a separate branch of law until the nineteenth century. Indeed, such recognition was not widespread until the twentieth century in the Anglo- American countries and the dominance of private law was the reason for this delay. Administrative law is essentially a part of the private law of persons and in England and the United States administrative law was unknown. However, whether or not administrative law has a proper place in Common Law world is now a dead issue,20 though the debate about distinguishing public law and private law has been wide-ranging and variously focused and the distinction has contributed to a paradox in legal thinking.21 Dicey‟s theory that anything like a driotadministratif is incompatible with traditions and principles governing the Common Law have been swept away by the inexorable needs of modern industrial society and the welfare state.22 In the United States the rise of administrative law is contemporaneous with the need for governmental regulation of industry. Such a need led to the creation in 1887 of the Interstate Commerce Commission (ICC). In the years that followed the creation of the ICC the same need for regulation was felt in other parts of the American economic scene. This was especially true during the period following the economic crisis of 1929. The result has been the establishment of a host of regulatory agencies modeled on the ICC. The most important are the